In diplomacy and international relations (IR), shuttle diplomacy is the action of an outside entity serving as an intermediary between (or among) parties in a dispute, without direct party-to-party contact. Originally and usually, the process entails successive travel ("shuttling") by the intermediary, from the working location of one principal, to that of another.
The term was first applied to describe the efforts of United States Secretary of State Henry Kissinger, beginning November 5, 1973, [1] which facilitated the cessation of hostilities following the Yom Kippur War. Shuttle diplomacy was widely used during the United States presidential administrations of Richard Nixon, Gerald Ford, and Jimmy Carter, with the Camp David Accords culminating in the initial peace framework in the Middle East coordinated in the 1970s.
Negotiators often use shuttle diplomacy when one or both of two principals refuses recognition of the other prior to mutually desired negotiation.
Mediators have adopted the term "shuttle diplomacy" as well. [2]
An early form of shuttle diplomacy emerged at the Paris Peace Conference in 1919 when Italy briefly withdrew from the Conference in protest of the other international delegations' refusal to grant its irredentist territorial claims promised by the Treaty of London in 1915. Upon Italy's return, Colonel Edward House of the U.S. delegation attempted to solve its conflict with the Kingdom of Serbs, Croats, and Slovenes by placing the two countries' delegates in separate rooms and attempting to broker a compromise between the two. House's efforts were ultimately unsuccessful, leading to the collapse of Italian Prime Minister Vittorio Orlando's government in Rome and Gabriele D'Annunzio's takeover of Fiume. [3]
Kissinger continued to participate in shuttle diplomacy in the Middle East during the Nixon and Ford administrations (1969–1977); it resulted in the Sinai Interim Agreement (1975) and arrangements between Israel and Syria on the Golan Heights (1974). [4] The term became widespread during Kissinger's service as Secretary of State.
Soon after Kissinger's efforts, shuttle diplomacy came to the United States in the form of Israel and Egypt conducting negotiations at Camp David. The negotiations were successfully facilitated by President Jimmy Carter. [5]
Turkey has carried out shuttle diplomacy, often involving Israel: Turkey was Israel's closest ally in the Muslim world, and some Arab countries (notably Syria, which has common borders with both Turkey and Israel) have been amenable to Turkey, with its own Muslim majority population. [6] Another Turkish mediation took place between Russia and Georgia during their war in 2008. [7]
US Secretary of State Alexander Haig attempted to use shuttle diplomacy to mediate between the United Kingdom and Argentina during the Falklands War in 1982. [8]
French president Emmanuel Macron's shuttle diplomacy was unsuccessful in preventing the 2022 Russian invasion of Ukraine. [9]
The Yom Kippur War, also known as the Ramadan War, the October War, the 1973 Arab–Israeli War, or the Fourth Arab–Israeli War, was an armed conflict fought from 6 to 25 October 1973, between Israel and a coalition of Arab states led by Egypt and Syria. The majority of combat between the two sides took place in the Sinai Peninsula and the Golan Heights—both of which had been occupied by Israel in 1967—with some fighting in African Egypt and northern Israel. Egypt's initial objective in the war was to seize a foothold on the eastern bank of the Suez Canal and subsequently leverage these gains to negotiate the return of the rest of the Israeli-occupied Sinai Peninsula.
United Nations Security Council Resolution 242 (S/RES/242) was adopted unanimously by the UN Security Council on November 22, 1967, in the aftermath of the Six-Day War. It was adopted under Chapter VI of the UN Charter. The resolution was sponsored by British ambassador Lord Caradon and was one of five drafts under consideration.
Alexander Meigs Haig Jr. was United States secretary of state under president Ronald Reagan and White House chief of staff under presidents Richard Nixon and Gerald Ford. Prior to and in between these cabinet-level positions, he was a general in the U.S. Army, serving first as the vice chief of staff of the Army and then as Supreme Allied Commander Europe. In 1973, Haig became the youngest four-star general in the Army's history.
The Camp David Accords were a pair of political agreements signed by Egyptian President Anwar Sadat and Israeli Prime Minister Menachem Begin on 17 September 1978, following twelve days of secret negotiations at Camp David, the country retreat of the President of the United States in Maryland. The two framework agreements were signed at the White House and were witnessed by President Jimmy Carter. The second of these frameworks led directly to the 1979 Egypt–Israel peace treaty. Due to the agreement, Sadat and Begin received the shared 1978 Nobel Peace Prize. The first framework, which dealt with the Palestinian territories, was written without participation of the Palestinians and was condemned by the United Nations.
In October 1973, the Organization of Arab Petroleum Exporting Countries (OAPEC) announced that it was implementing a total oil embargo against the countries who had supported Israel at any point during the Fourth Arab–Israeli War, which began after Egypt and Syria launched a large-scale surprise attack in an ultimately unsuccessful attempt to recover the territories that they had lost to Israel during the Third Arab–Israeli War. In an effort that was led by Faisal of Saudi Arabia, the initial countries that OAPEC targeted were Canada, Japan, the Netherlands, the United Kingdom, and the United States. This list was later expanded to include Portugal, Rhodesia, and South Africa. In March 1974, OAPEC lifted the embargo, but the price of oil had risen by nearly 300%: from US$3 per barrel ($19/m3) to nearly US$12 per barrel ($75/m3) globally. Prices in the United States were significantly higher than the global average. After it was implemented, the embargo caused an oil crisis, or "shock", with many short- and long-term effects on the global economy as well as on global politics. The 1973 embargo later came to be referred to as the "first oil shock" vis-à-vis the "second oil shock" that was the 1979 oil crisis, brought upon by the Iranian Revolution.
Linkage was a foreign policy that was pursued by the United States and championed by Richard Nixon and Henry Kissinger in the 1970s détente, during the Cold War. The policy aimed to persuade the Soviet Union to co-operate in restraining revolutions in the Third World in return for concessions in nuclear and economic fields. Soviet interventions occurred in various conflicts such as the Angolan Civil War, the Mozambican Civil War, and the Ogaden War, while many revolutions still occurred in Third World countries, undermining the policy.
Operation Nickel Grass was the codename for a strategic airlift conducted by the United States to deliver weapons and supplies to Israel during the 1973 Arab–Israeli War. Between 14 October and 14 November of that year, the Military Airlift Command of the United States Air Force shipped approximately 22,325 tons of supplies, including tanks, artillery, and ammunition, in multiple flights of C-141 Starlifters and C-5 Galaxys. This initiative was undertaken to help improve the position of the Israeli military in the face of a large-scale joint offensive by Egypt and Syria, both of which had been receiving extensive support from the Soviet Union.
The Rogers Plan was a framework proposed by United States Secretary of State William P. Rogers to achieve an end to belligerence in the Arab–Israeli conflict following the Six-Day War and the continuing War of Attrition.
The Jarring Mission refers to efforts undertaken by Gunnar Jarring to achieve a peaceful settlement of the conflict between Israel and its Arab neighbors after the Six-Day War in 1967. He was appointed on 23 November 1967 by UN Secretary-General, U Thant, as Special Envoy under the terms of UN Security Council Resolution 242 to negotiate the implementation of the resolution.
The Geneva Conference of 1973 was an attempt to negotiate a solution to the Arab–Israeli conflict as envisioned in United Nations Security Council Resolution 338 following the called-for cease-fire to end the Yom Kippur War. After considerable "shuttle diplomacy" negotiations by Henry Kissinger, the conference opened on 21 December 1973 under the auspices of the United Nations Secretary General, with the United States and the USSR as co-chairmen. The foreign ministers of Egypt, Jordan and Israel were in attendance. The table with Syria's nameplate remained unoccupied, although Syria had indicated possible future participation. Each foreign minister spoke, mainly directed to their domestic audiences rather than to each other. Kissinger articulated his step-by-step strategy and stated that the goal of the conference was peace; the immediate need was to strengthen the cease-fire by accomplishing a disengagement of forces as the "essential first step" toward implementation of UN 242. The meeting was then adjourned.
The modern borders of Israel exist as the result both of past wars and of diplomatic agreements between the State of Israel and its neighbours, as well as an effect of the agreements among colonial powers ruling in the region before Israel's creation. Only two of Israel's five total potential land borders are internationally recognized and uncontested, while the other three remain disputed; the majority of its border disputes are rooted in territorial changes that came about as a result of the 1967 Arab–Israeli War, which saw Israel occupy large swathes of territory from its rivals. Israel's two formally recognized and confirmed borders exist with Egypt and Jordan since the 1979 Egypt–Israel peace treaty and the 1994 Israel–Jordan peace treaty, while its borders with Syria, Lebanon and the Palestinian territories remain internationally defined as contested.
Constructive ambiguity is a term generally credited to Henry Kissinger, said to be the foremost exponent of the negotiating tactic it designates. It refers to the deliberate use of ambiguous language on a sensitive issue in order to advance some political purpose. Constructive ambiguity is often disparaged as fudging. It might be employed in a negotiation, both to disguise an inability to resolve a contentious issue on which the parties remain far apart and to do so in a manner that enables each to claim obtaining some concession on it.
The Palestinian autonomy talks was an outgrowth of the Egypt–Israel peace treaty and were designed to lead to a resolution of the Palestinian nationalism in the West Bank and Gaza Strip. According to The Framework for Peace in the Middle East, one part of the 1978 Camp David Accords, Egypt and Israel were to agree within one year on elections for a Palestinian “self-governing authority.” The idea was directly related to Israeli Prime Minister Menachem Begin’s idea of Palestinian autonomy.
Israel–Syria relations refer to the bilateral ties between the State of Israel and the Syrian Arab Republic. The two countries have been locked in a perpetual war since the establishment of Israel in 1948, with their most significant and direct armed engagements being in the First Arab–Israeli War in 1948–1949, the Third Arab–Israeli War in 1967, and the Fourth Arab–Israeli War in 1973. Additionally, Israeli and Syrian forces also saw relatively extensive combat against each other during the Lebanese Civil War, the 1982 Lebanon War, as well as the War of Attrition. Both states have at times signed and held armistice agreements, although all efforts to achieve complete peace have been without success. Syria has never recognized Israel as a legitimate state and does not accept Israeli passports as legally valid for entry into Syrian territory; Israel likewise regards Syria as a hostile state and generally prohibits its citizens from travelling there, with some exceptions and special accommodations being made by both countries for Druze people residing in Syria and the Golan Heights. Israel and Syria have never established formal diplomatic relations since the inception of both countries in the mid-20th century.
United Nations Security Council Resolution 1934, adopted unanimously on June 30, 2010, after considering a report by the Secretary-General Ban Ki-moon regarding the United Nations Disengagement Observer Force (UNDOF), the Council extended its mandate for a further six months until December 31, 2010.
Egypt–Syria relations refers to the bilateral relations between the Arab Republic of Egypt and the Syrian Arab Republic. Egypt has an embassy in Damascus. Syria has an embassy in Cairo. Both countries are members of the Arab League.
The Agreement on Disengagement is an agreement between Israel and Syria that was signed on May 31, 1974, which officially ended the Yom Kippur War and the subsequent attrition period on the Syrian front.
The Madrid Conference of 1991 was a peace conference, held from 30 October to 1 November 1991 in Madrid, hosted by Spain and co-sponsored by the United States and the Soviet Union. It was an attempt by the international community to revive the Israeli–Palestinian peace process through negotiations, involving Israel and the Palestinians as well as Arab countries, including Jordan, Lebanon and Syria.
The presidency of Richard Nixon began on January 20, 1969, when Richard Nixon was inaugurated as the 37th president of the United States, and ended on August 9, 1974, when, in the face of almost certain impeachment and removal from office, he resigned the presidency.
The United States foreign policy during the 1974–1977 presidency of Gerald Ford was marked by efforts to de-escalate the Cold War. Ford focused on maintaining stability and promoting détente with the Soviet Union. One of Ford's key foreign policy achievements was the signing of the Helsinki Accords in 1975. The accords were a series of agreements between the US, Soviet Union, and other European countries that aimed to promote human rights, economic cooperation, and peaceful relations between East and West. Ford met with Soviet leader Leonid Brezhnev several times, and the two countries signed the Strategic Arms Limitation Talks in 1979, which aimed to limit the number of nuclear weapons held by the two superpowers.
After the opening session, the parties usually break into caucus groups, and the mediator utilizes shuttle diplomacy between the groups in order to identify interests and positions of the parties and help them create solutions.
The high points in Kissinger's shuttle diplomacy were:[...] (2) May 1974; the Syrian and the Israeli armies agree to the Golan Heights disengagement